The role of social capital within policy networks: evidence from EU cohesion policy in Spain

Abstract

This article focuses on the policy process stemming from European cohesion policy at the regional level and at its programming stage (which precedes the implementation phase). It aims to explain how the formally introduced EU ‘partnership’ principles and rules work in practice in different political environments. The article argues that externally introduced procedural decision rules have different impacts on effective policymaking processes. In particular, we suggest that the patterns of social capital linkages carried by the actors involved produce different regional policy networks, even though the existing formal rules are similar. Relying on social network analysis as its main methodological tool, the article presents empirical evidence drawn from two similar Spanish regions, identifies the characteristics of the actors’ social capital and compares the structures of the policy networks dealing with the programming tasks in the two regions. Our findings suggest that the structures differ according to the amount of linking social capital displayed by the actors involved in the policy networks. We discuss in detail our exploratory hypothesis, considering also other possible variables that might account for these variations. Points for practitioners In this article we demonstrate that the EU partnership principle, as a set of formal rules, does not always work in practice as expected; we found that only when the actors involved share a certain level of trust does it produce and reinforce the expected pluralist and deliberative contexts for decision-making. In fact, EU partnership rules contribute to making policymaking more transparent and better procedurally organized by essentially sorting out the social capital resources already possessed by public and private actors involved in the policy network. This suggests that investing in the creation of social capital for regional elites might significantly improve the current EU institutional design of regional policy. More generally, we argue that partnership designs that provide stronger incentives for political and social elites to build their own social capital resources could make the implementation of decentralized regional policies more effective.